Political Participation in Republic of Korea
JOA - SOON IM
Secretary General
National Election Commission,
Republic of Korea
1. The Mechanics of Participation : Voter Registration
As is well known, voter registration system can be classified, according to the locus of
initiative in the registration process, as registration by application and registration by the
authorities. In the system of registration by the authorities, the authorities take the
initiative in the registration process and identify ineligible voters, and then remove them
from voter lists; while in the system of registration by application, citizens take the
initiative, and eligible voters apply for registration on voter lists.
South Korea has a system of registration by the authorities, in which local
autonomous bodies prepare new voters’ list for each election, and upon which Election
Commission has a supervisory responsibility.
In the past, voters’ lists were manually prepared. However, since the establishment of
the electronic resident registration system, preparation of accurate voters’ lists is simply
a click away. Voters’ lists prepared this way are offered to public inspection for three
days. When it is found that ineligible voters are on the list or eligible voters are out of
the list, concerned voters can ask the authority concerned for correction, and the
authority concerned then makes correction when it judges the challenge is reasonable,
thus making the voters’ list as flawless as possible.
Unlike the system of registration by application, the system adopted by South Korea
has an advantage of enhancing voter participation. In South Korea, the door to
participation is wide-open to every eligible voter. Though it is another matter whether
those who are on the voters’ list will vote or not, in principle, South Korean system
prevents, the cases of disfranchisements that can be caused by the eligible voters’
negligence of application. However, due to the necessity of maintaining information on
residents systematically, it is difficult for a country that has no such a system to adopt
the South Korean system of voter registration.
2. Encouraging Participation: is it a job for EMB?
I fully understand that it is not the responsibility of Election Management Bodies to
encourage voter participation in every country. However, in South Korea, the
responsibility of encouraging voter participation, and voter education on their attitude
toward election is one of the most important duties of EMB.
The most important responsibility of EMB is of course to guarantee fairness in the
election process, so that the selection of representatives is based on the will of the
people. However, such results cannot be achieved when EMB is solely absorbed in the
administration of election procedure prescribed in the law. Fair election can be achieved
only when voters have easy access to the information of candidates’ policies and their
sincerity, thus when they can make informed-decision.
In South Korea, there are elections for the President, the National Assembly, regional
and local Councils and Executives, and education Councils and Executives. All of
which the so-called “first past the post” principle is applied, and the turnout rate is
continuously declining. Turnout ratios in presidential and National Assembly elections
are somewhere in the 70s, though, they plummet below 50s in the case of local elections.
This raises the issue of legitimacy of the representatives. One more serious problem in
the decline of the turnout rate is the possibility of distortion in election results by
organizational power or money, which is undesirable in political development.
For the reasons mentioned above, the Election Commission in South Korea spends
considerable energy in promoting participation and enlightening voters. Specifically,
Election Commission organizes joint speech rallies, TV debates, and party debates in
order to provide voters with information on candidates, thus enabling voters to make
informed choices. Moreover, the Election Commission administers political education
programs in order to promote voter participation and enhance the awareness of voters of
the importance of participation. It also makes advertisements using Internet, posters,
placards, and electric bulletin boards, etc.
Should there be an opportunity, I can explain on the details in the next session.
3. Innovative Techniques for Encouraging Participation
The National Election Commission of South Korea has been engaged in various
activities to promote voter participation and enhance awareness on the importance of
participation. Such promotion activities were mainly carried out not during election
campaign periods, but during non-election periods. It may sound like boasting but such
activities were possible due to the devotion of our staff members. Although promotion
strategies should be adjusted to the social and cultural heritage of each country, I will
tell you our experience in Korea as a reference.
As in many countries, political indifference of the younger generation, especially
those in their 20s and 30s, emerged as a serious problem in Korea. Accordingly, our
promotion efforts have been concentrated on finding measures to solve their problem of
political indifference, and to promote their participation. Development of information
technology in Korea is quite successful, and it enables most people to use Internet.
Internet influence on the younger generation is extraordinary, and there is an assessment
that the election of President Roh was, to a great extent, influenced by the Internet.
Recognizing the influence of the Internet, we adjusted our public relations strategy to
this environmental change. We opened a PR bulletin on our homepage in order to arouse
political interests of the people, and encouraged the opening of numerous political
debate forums on many Internet portals.
Additionally, we commissioned a very popular entertainment star as an ambassador of
fair election, used her image in advertisements, posters, and placards, held fan
autograph events, and made a cartoon character that symbolizes a guardian of fair
election. We assess that such a strategy was very successful in arousing interest and
encouraging participation in the elections. I think this can be emulated by many
countries.
During non-election periods, our staff members engage in lecturing on the importance
of active participation in the electoral process by students, housewives, and elders with
democratic citizenship awareness. The staff also acts as guides of the elections for
student associations and other numerous social organizations. This way their election
practices respect democratic principles.
In addition, we operate “election class” program in order for students to recognize the
importance of electoral participation. In the program, we make an imitation polling
station, and the roles of poll watcher, staff, voter, etc are assigned to students. Due to the
fun in role-playing, the election class program is very popular among students.
We use mass communication media in our promotion activities. For example, we
make advertisement on TV (inclusive of CATV), radio, in newspapers, and actively
participate in forums, debates, etc. held by the media. The difference with the previously
mentioned activities is that because it costs a lot of money, we use such a strategy when
an election is approaching.
Increase in voter participation may be achieved either by coercion or incentives. For
the method of incentives, we made a small experiment of providing voters or a voting
district with small gifts in a couple of by-elections to encourage voter participation. This
brought forth severe criticism from both general public and candidates. The general
public criticized that such a measure degenerates the sacred election into a lottery, and
some candidates raised the issue of fairness of the measure because they thought that
turnout rates may affect their chance of winning the election. Due to such criticisms, we
stopped that experiment.
Encouraged by precedence in other countries, we made an announcement that there
will be legislation that negligent voters will be fined. Once again a barrage of criticism
from mass media and every sector of civil society was provoked. They insisted that
abstention is a form of political choice of voters.
Since such measures will have great impact on citizens, they should be adapted with
caution and care.
4. Voter Education and its Relevance
As I mentioned in the previous session, we have done many activities to promote voter
participation. The education of voters has been the main activity for us. The contents of
the education are to make them participate in election, with a sense of democratic
citizenship and responsibility.
We have polled voters' awareness at every election in order to confirm the effect of
voter education. According to the results of election poll in which we used to ask 1,500
people before, during, and after the elections, the effectiveness of voter education
reaches to the 50%. I think the rate is enough to show the effect of the education
increasing election participation.
The most representative form of voter education is lecture on reforming democratic
citizenship of Korean people. My staff held lectures for over one million people in 2002.
No matter how educational the content is, it is foremost important to get the attention
and interests of the lectured. Therefore, methods and material for the lecture are very
important, and, of course, we put our focus on developing lecture methods and making
lecture material.
With voter education, running election class is another significant activity.
Understanding students as potential voters, we manage an election class for them to
emphasize the importance of participating in the election and to help cultivate
awareness and quality for being democratic citizen. In the election class a mock voting
booth is set up to experience voting. Students are also given the chance to act out the
parts of chief of voting station, commissioner, voting station assistant and poll watcher.
We have other educational programs that students take an active part in.
Educating voters is an effective way to induce participation. I believe that the EMB
holding such programs to increase participation brings about proper election culture.
5. Media, Elections and Participation: Issues and Challenges
The EMB has been using the media to enlarge voter participation.
TV, radio, newspaper advertisements are examples of how we use the media. By
providing the voters with information related to the election and having voters
participate in broadcasted discussions and interviews, we are emphasizing the
importance of participating in the election. Also, we give the voters information on each
candidate' election pledges so they can use the information when voting. This leads to
higher levels of interest in politics and participation in the elections.
Voters show most interest in candidates' joint TV Debates. Joint TV Debates have been
held since the 1997 presidential election. Currently, TV debates are used at presidential
and mayoral/governor elections. We plan to expand the debates to National Assembly
and local executive elections. Another merit of the TV debates is that they cut down
campaign expenses.
Reports and critiques of the media have a decisive influence on the participation of
voters. After the 2002 presidential election, we researched the media's influence. The
results showed that the majority of voters acquired their information from TV and
newspaper reports and critiques.
Although the media is able to increase voter participation, it has some negative side
effects. Alternatives that can minimize these side effects need to be prepared. A neutral
and objective report is especially important. In Korea, Political Broadcast Deliberation
Committee and Election News Deliberation Committee reviews reports and critiques
related to the election. They make sure that false claims or slander is not distributed.
6. Removing Barriers to Participation: the Example of Disabled
Citizens
Although society supports the disabled in areas of rights and interests, and welfare, their
disability keeps them from participating in the elections and asserting their rights.
EMBs need to make alternatives so the disabled can freely take part in elections.
The Korean EMB has a few systems and arrangements for the disabled. It is possible for
the physically challenged to vote at home. We set up voting booths in hospitals and
nursing homes for institutionalized patients. To make voting as convenient as possible
we set up ramps and have student helpers. Using student helpers has shown a
mentionable effect. That is, these student helpers learn the importance of participating in
elections and understand that disabled citizens are also a part of our society.
For visually impaired people, we have supplementary tools and provide election guides
that are written in Braille. For the hearing impaired, we have helpers sign the candidate
pledges made at various discussions. Such systems and arrangements help the disabled
vote.